Final Research Paper

SAFETY CULTURE NETWORKING IN THAILAND

PUNTATIP SRIKWAN
Plan and Policy Analyst
Department of Disaster Prevention and Mitigation (DDPM)
Ministry of Interior
THAILAND

Asian Disaster Reduction Center (ADRC)
Visiting Researcher 2017BDISCLAIMER
This report was compiled by an ADRC visiting researcher (VR) from ADRC member
countries.
The views expressed in the report do not necessarily reflect the views of the ADRC.
The boundaries and names shown and the designations used on the maps in the report
also do not imply official endorsement or acceptance by the ADRC.

TABLE OF CONTENTS
1. INTRODUCTION

11.1

BACKGROUND AND SIGNIFICANCE

1

1.2

PROBLEM

1

1.3

QUESTION

1

1.4

SPECIFIC AIM

1

1.5

SCOPE OF STUDY

1

2. DISASTER MANAGEMENT IN JAPAN2

2.1

GENERAL INFORMATION

2

2.2

JAPAN DISASTER PROFILE

2

2.3

JAPAN DISASTER MANAGEMENT SYSTEM

3

3. DISASTER MANAGEMENT IN THAILAND

9

3.1

GENERAL INFORMATION

93.2

THAILAND DISASTER PROFILE

11

3.3

THAILAND DISASTER MANAGEMENT SYSTEM

13

4. SAFTY CULTURE NETWORKING

17

4.1

INTRODUCTION

17

4.2

SAFTY CULTURE NETWORKING IN JAPAN

19

4.3

SAFTY CULTURE NETWORKING IN THAILAND

29

5. LESSONS LEARNED FROM JAPAN, CONCLUSION

43

AND RECOMMENDATIONS
5.1

LESSONS LEARNED FROM JAPAN

43

5.2

CONCLUSION AND RECOMMENDATIONS

48

REFERNCE

53

CHAPTER 1: INTRODUCTION
1.1

BACKGROUND AND SINIFICANCE
At present, Thailand is driving agenda on “SAFETY THAILAND” policy which accelerates

the building of safety culture in Thai society and compels cooperation in concrete disastermanagement in regional level and global community in order to achieve the important goals
for providing safety to Thai people and improve standard of disaster management. Therefore,
DDPM, as the central government agency to operate any related activities on national disasterprevention and mitigation including promoting network activities, realizes the importanceof developing safety culture in Thailand.
Network in community is initiate unit of disaster management. Most members of
network are social leaders and play important role in the community. They can transfer
Safety Culture to the people in community.Thus, Effective networks are critical to cultivating
Safety Culture in community.

1.2

PROBLEM
Thai communities and people lack of safety culture

1.3

QUESTION-

How to cultivate and increase safety culture in Thailand-

How to strengthen networking in Thailand for cultivating and increasing safety
culture in their community.

1.4

SPECIFIC AIMS-

To understand the Disaster Management in Japan.

-

To understand the concept and experience of safety culture networking
in Japan.

-To develop safety culture networking in Thailand toward building community
resilience to disaster.

1.5

SCOPE OF STUDY
Investigating, analyzing and comparing safety culture networking between Japan and

Thailand in terms of law, plan, policy and activities.

1

CHAPTER 2: DISASTER MANAGEMENT IN JAPAN2.1

GENERAL INFORMATION
Japan is an island country located in the western Pacific Ocean. Total land area isabout 378,000 square kilometers. More than 70 percent of land surface is mountainous.
As it is situated along the circum-Pacific volcanic belt, Japan has several volcanic regions
and frequently affected by earthquakes and Tsunami. A major feature of Japan‟s climate is
the clear-cut temperature changes between the four seasons. In spite of its rather small area,
the climate differs in regions from a subarctic climate to a subtropical climate. The side of
the country which faces the Sea of Japan has a climate with much snow in winter by seasonal
winds from the Siberia. Most of the areas have damp rainy season from May to July by
the seasonal winds from the Pacific Ocean. From July to September, Japan frequently suffersfrom Typhoon. The capital is Tokyo. Total population is about 127.77 million. (ADRC, 2018 :online).
2.2

JAPAN DISASTER PROFILE
Japan is located in the Circum-Pacific Mobile Belt where seismic and volcanic

activities occur constantly. Although the country covers only 0.25% of the land area on
the planet, the number of earthquakes and active volcanoes is quite high. In addition,
because of geographical, topographical and meteorological conditions, the country is subject
to frequent natural disasters such as typhoons, torrential rains, and heavy snowfalls, as wellas earthquakes and tsunami (Cabinet Office, 2015 : online).
Japan is affected by Typhoon mostly every year and Volcanic disasters triggeredby eruption and volcanic earthquake. Japan is earthquake prone area due to the geologicalformation with plate boundaries of the Pacific plate, the Philippine Sea plate, the Eurasianplate, and the North American plate.
The past major disasters are as follows:•

Great Hanshin-Awaji Earthquake (January 1995)
On 17 January 1995, an earthquake with a 7.3 on the Richter scale occurred at Awaji
island of Hyogo Prefecture in Western Japan. It killed 6,434 people, injured 43,792
people, destroyed 104,906 houses, half destroyed 144,274 houses, and partiallydestroyed 390,506 houses. By the fires broke out along with the earthquake, the areaof 835,858 square meters was burnt down.

Niigata Ken Chue Su Earthquake (October 2004)
On 23 October 2004, Niigata Prefecture was affected by an earthquake with
a 6.8 on the Richter scale. Landslides and destruction of buildings and houses
2caused 68 dead, and 4,805 injured. 3,175 houses were totally destroyed, 13,810
houses were half destroyed, and 105,573 houses were partially destroyed.


The Great East Japan Earthquake
A magnitude 9.0 earthquake hit the northeastern Japan on 11 March 2011, recording
the largest earthquake hit in Japan. Its epicenter was located in the coast of Sanriku
and its epicentral area stretched from the coasts of Iwate Prefecture to Ibaraki
Prefecture. Massive shakes were observed particularly in eastern Japan including
Japanese intensity scale of 7 registered in the north of Miyagi Prefecture. Furthermore,this earthquake, a trench-type earthquake occurred near the boundary of the PacificPlate and the plate beneath Tohoku area, triggered seafloor movements and generated
massive tsunami. According to the National Police Agency, this earthquake and tsunami
have left unprecedented human suffering: 15,870 people death, 2,814 people missing
and 6,114 people injured, as well as property damage: 129,472 totally collapsedbuildings, 255,977 half collapsed buildings and 702,928 partially collapsed buildings.
Furthermore, the value of the destruction of the social infrastructure, housing, andcorporate facilities was estimated at 16.9 trillion yen and it had a great impact on
Japanese economy.

2.3

JAPAN DISASTER MANAGEMENT SYSTEM

2.3.1

Overview
Under the Disaster Countermeasures Basic Act, the Central Disaster Management

Council was formed, its brief being to ensure the comprehensiveness of disaster risk
management and to discuss matters of importance with regard to disaster management.
The council consists of the Prime Minister, who is the chairperson, Minister of State forDisaster Management, all ministers, heads of major public institutions and experts.
Within the Cabinet Office, which is the secretariat for this Council, the Minister ofState for Disaster Management has been assigned as the Minister State for Special Missions
for this issue. This Minister is assisted by the department of the Cabinet Office Director-Generalfor Disaster Management his mandate being to handle planning and central coordination withregard to matters relating to basic policy on disaster risk reduction, and matters concerning
disaster countermeasures in the event of a large-scale disaster.
In prefectures and local municipalities, the prefectural and municipal Disaster
Management Councils are established with the members of representatives of local
government organizations including police and fire management department, and designatedlocal public corporations. Implementation of disaster risk management measures is basedon the Local Disaster Management Plans drafted by the Councils. (ADRC, 2018: online)
3Source: http://www.bousai.go.jp

2.3.2

Disaster Management Law
In order to applying to all of the disaster phases of prevention, mitigation andpreparedness, emergency response as well as recovery and rehabilitation, relevant laws
and regulations were enacted. They include Disaster Countermeasures Basic Act (1961),
Erosion Control Act (1897), Disaster Relief Act (1947), Building Standard Law (1950),
Landslide Prevention Act (1958), River Act (1964), and Act on Special Measures forLarge-scale Earthquakes (1978). (ADRC, 2018 : online)
The Disaster Countermeasures Basic Act in 1961 formulates a comprehensive
and strategic disaster management system. Thereafter, the disaster management system
has been continuously reviewed and revised following the lessons learned from large-scaledisasters. (Cabinet Office, 2015 : online)
Outline of the Disaster Countermeasures Basic Act:
1) Clearer definition of the philosophy and the responsibilities for disastermanagement.
-

Basic idea of disaster countermeasures: Clarification of basic policies
including the concept of disaster reduction-

Responsibilities

of

the

government,

prefectures,municipalities,

anddesignated public institutions: Formulation and implementation of thephilosophy and plan for disaster management, mutual cooperation
2) Organization:

Development

andpromotionofcomprehensive

disastermanagement administration

4-National government: Central Disaster Management Council, major (extreme)disaster management headquarters-

Prefecturalandmunicipal

governments:

Local

disastermanagement

headquarters
3) Planningsystem:Development

andpromotionofsystematic

disastermanagement measures-

Central Disaster Management Council: Disaster Management Basic Plan-

Designated local government organizations and public institutions: Disastermanagement operation plan-

Prefectures and municipalities: Local disaster management plan-

Residents: Community disaster management plan

4) Promotion of Disaster Countermeasures-

Definition of the roles and responsibilities to be performed by each actor ineach stage of prevention, preparedness, response and recovery-

Primary disaster response procedures including evacuation order by the headof municipalities taking over emergency measures by prefectures ordesignated administrations in case of the large-scale disaster5) Protection of affected people and their livelihood-

Prior preparation of the lists of the people requiring assistance in the caseof disaster-

Clarification of the standards for evacuation centers and facilities in the caseof disaster-

Improvement and expansion of protection measures for affected people
through preparation of the certificates and the list of affected people-

Stipulation of

the framework for

wide-scale evacuation and goods

transportation
6) Financial measures-

Implementation of laws are funded by each responsible party-

Financial measures for extreme disasters by the government7) State of Disaster Emergency-

Declaration of disaster emergency state →Cabinet decision of government‟s
policy (basic policy for countermeasures)-

Emergency measures (restriction on distribution of basic necessities,
moratorium on financial obligation, urgent enactment of Cabinet Order related
to acceptance of international support, automatic enforcement of the Act on
Special Measures concerning Preservation of Rights and Interests of Victimsof Specified Disaster)5

2.3.3

Disaster Management Plans
Japan is governed by a three-tiered administration: the national government, prefectures,and municipalities. The head of each level takes full responsibility for that jurisdiction in a
structure similar to that of a nation. Comprehensive disaster prevention plans are developedin accordance with the roles to be performed at each stage.
Cabinet Office, Government of Japan explains Disaster Management Planning
System and Basic Disaster Management Plan as follows:
1) Disaster Management Planning System
1.1 ) Basic Disaster Management Plan: This plan is the highest-level plan andconstitutes the basis for disaster management activities prepared by the Central Disaster
Management Council based on the Disaster Countermeasures Basic Act.
1.2 ) Disaster Management Operation Plan: This is a plan made by each
designated government organization and designated public corporation based on the Basic
Disaster Management Plan
1.3 ) Local Disaster Management Plan: This is a plan made by each Prefectural
and Municipal Disaster Management Council, subject to local circumstances and based on
the Basic Disaster Management Plan
1.4 ) Community Disaster Management Plan: This is a disaster management
activities plan at the community level which is established by residents and businesses jointly
on a voluntary basis.
2) Basic Disaster Management Plan
The Basic Disaster Management Plan is a comprehensive and long-term disastermanagement plan forming a foundation for the Disaster Management Operations Plan andLocal Disaster Management Plan. It stipulates provisions for the establishment of the disastermanagement system promotion of disaster management measures, acceleration of postdisaster recovery and reconstruction measures, and promotion of scientific and technologicalresearch on disaster management.

6

Source: http://www.bousai.go.jp

2.3.4

Emergency Response to Disasters
Cabinet Office, Government of Japan explains Emergency Response to Disasters as

follows:
1)

Outline of Disaster Emergency Response

In the event of a disaster, the national and local governments quickly collect andshare disaster and damage information, and secure communications to carry out effective
emergency activities such as emergency rescue and medical operations. Based on suchinformation, local governments set up disaster management headquarters and relatedorganizations establish their own operation mechanisms. The national government collects
disaster information at the Cabinet Information Collection Center 24 hours a day. Whena large-scale disaster strikes, an emergency team composed of the director-generals of
the respective ministries and agencies gathers immediately at the Crisis Management Centerin the Prime Minister's Official Residence to grasp and analyze the disaster situation, andreport the results to the Prime Minister. Disaster Management meetings at the ministerial
or high-ranking senior official level are held, as necessary. According to the level of damage,the government may establish the Headquarters for Major Disaster Management (headedby the Minister of State for Disaster Management) or the Extreme Disaster Management
Headquarters (headed by the Prime Minister), to establish the policies for the disastercountermeasures, and to coordinate various emergency measures to be taken by variousorganizations. Further, in order to grasp the situation in the disaster area, a government
investigation team headed by the Minister of State for Disaster Management may bedispatched, or if quick and swift actions are needed to be taken with overall coordination7

of emergency activities on site, the government may establish the onsite headquarters fordisaster management.
2) Wide-area Support System
In case of large-scale disasters that exceed the response capabilities of the affected
local government, various wide-area support mechanisms are mobilized by the National
Police Agency (Disaster Response Units), Fire and Disaster Management Agency(Emergency Fire Rescue Team), and Japan Coast Guard. Furthermore, the Self-Defense
Forces can be dispatched for emergency response activities upon request from the governorof the affected prefecture. Also, the Disaster Medical Assistance Teams (DMATs) aredispatched to provide wide-area medical services. These teams transport severely injured
persons via Self-Defense Forces vehicles and aircrafts to hospitals outside the disaster
stricken zone.
3) System for coordinating activities between the national government and local
public entities
In the event of a disaster occurring, municipalities will primarily be engaged inemergency countermeasures as they are the closest to residents. Prefectural administration
will get involved when the comprehensive wider-area measures are necessary.
In the event of a large-scale disaster beyond the capability of local public entities
struck by the disaster, national government will step in to support the local entity andcoordinate mutual support among the local entities.
At the national level, the Extreme Disaster Management Headquarters or
the Major Disaster Management Headquarters is set up to promptly collect the disaster
information from relevant ministries and local public entities struck by the disaster, andoverall coordination is provided for rescue, first aid, medical and emergency supplies asnecessary and appropriate. Also, an on-site disaster management headquarters may be
set up to promptly coordinate among the affected local entities and collect information andrequests from relevant prefectures and to properly conduct the emergency response
activities in consideration to the needs for the affected people.
The on-site disaster management headquarters were set up in the affected areas
in such cases as the Great East Japan Earthquake in 2011, the heavy snowfall in 2014,
the torrential rainfall in August 2014, and the volcanic eruption of Mt. Ontake in 2014.
Through joint meetings held in collaboration with the disaster response headquartersorganized by the local entities in the affected areas, the national government and the local
entities coordinate based on their shared awareness to serve as the government‟s closest
one-stop contact point for requests from the affected local entities. As such, the role ofthe on-site disaster management headquarters is increasing its importance.
8

CHAPTER 3 : DISASTER MANAGEMENT IN THAILAND
3.1

GENERAL INFORMATIONThe Kingdom of Thailand lies in the heart ofSoutheast Asia, has a land area of 513,120
sq.km. It is bordered by Myanmar (West &North),

Laos(North&East),

Cambodia(Southeast), and Malaysia (South).The Thai
coastline stretches for 3,219 km along boththe Gulf of Thailand on the Pacific side, and
the Andaman Sea on the Indian Ocean side.
The highest point in Thailand is Doi Inthanon,
at 2,565 meters (8,415 feet). The lowest pointis the Gulf of Thailand, at sea level.
Thailand is divided into four regions; the North, the Central or the Chao Phraya River Basin,
the Northeast or the Korat Plateau and the south or the Southern Peninsula. The northern
region terrain is mountainous which render this region to be prone to water-related disasters
such as flashflood, landslide and debris flow. The northeastern region is an arid area on
Korat Plateau and frequently suffers flashflood and inundation during rainy season, severe
drought and cold spell during summer and cool season. The central region, the vast fertile
land which is dubbed as the "Rice Bowl" of the country often encounters the repeatedriverine flood and urban inundation during the rainy season. The southern region terrain
is hilly on the west coast and the coastal plain on the east. This part of Thailand has
occasionally frequented flashflood, mudslide, tropical storm and forest fire.
Thailand is unitary state in Southeast Asia and a constitutional monarchy under
the king, The King of Thailand, King Vajiralongkorn (or Rama X), is the current monarch,
reigning since the death of his father Bhumibol Adulyadej (Rama IX) on 13 October 2016,
in actuality he has only exercised the role of monarch since 1 December 2016.
The combination of Thailand administration from three concepts as follows;
1) Centralization
2) Decentralization
3) Deconcentration
Established by the Constitution of Thailand and the State Administration Act, there
are three tiers of the administrative structure in Thailand including the central administration,
the provincial administration, and local administration. At the central level, there are twenty
ministries under the supervision of the Cabinet which play major roles in policy formulation

9and implementation. At the provincial level, the administration is a dual system of provincial
administration and local administration. The provincial administration combines of Provinces,
Districts, Sub-Districts and Villages. The national government delegates some power andauthorities to its deconcentrated entities or Provinces and Districts which are in hand of
the provincial offices of ministries under the concept of deconcentration. In order to steer andcooperate the operations of numerous governmental agencies in provinces and districts,
those provincial offices are headed by a governor and district chief officer who are directly
appointed by the Ministry of Interior. On the other hand, the local administration is based on
the concept of decentralization where mayors and councils of those local autonomous selfgovernments are directly selected via local elections allowing them to govern their own local.
However, those local autonomous self-governments remain under the supervision of district
chief officers, provincial governors and the Minister of the Interior who have the authorities toapprove local regulations, local development plans and annual budget plans, local councils,
and dismiss local councillors. The local administrative organizations are classified into two
types including the general type (Provincial Administration Organisation, Municipalities, andSub-district Administration Organisation); and two special status cities: Bangkok Metropolitan
Administration and the city of Pattaya (Alongkot Meekaew, 2017).

The Administrative Structure of Thailand

Source : Alongkot Meekaew, 2017, 14

According to the administration structures of Thailand, therefore, all layers ofadministrative structures are:10Central

Administrationconsistsofministries,

bureausanddepartments.

The ministries and bureaus are divided into departments.
Provincial Administration consists of 75 provinces (changwat) ; Amnat Charoen,
Ang Thong, Bueng Kan, Buriram, Chachoengsao, Chai Nat, Chaiyaphum, Chanthaburi,
Chiang Mai, Chiang Rai, Chon Buri, Chumphon, Kalasin, Kamphaeng Phet, Kanchanaburi,
Khon Kaen, Krabi,, Lampang, Lamphun, Loei, Lop Buri, Mae Hong Son, Maha Sarakham,
Mukdahan, Nakhon Nayok, Nakhon Pathom, Nakhon Phanom, Nakhon Ratchasima, Nakhon
Sawan, Nakhon Si Thammarat, Nan, Narathiwat, Nong Bua Lamphu, Nong Khai, Nonthaburi,
Pathum Thani, Pattani, Phangnga, Phatthalung, Phayao, Phetchabun, Phetchaburi, Phichit,
Phitsanulok, Phra Nakhon Si Ayutthaya, Phrae, Phuket, Prachin Buri, Prachuap Khiri Khan,
Ranong, Ratchaburi, Rayong, Roi Et, Sa Kaeo, Sakon Nakhon, Samut Prakan, Samut
Sakhon, Samut Songkhram, Sara Buri, Satun, Sing Buri, Sisaket, Songkhla, Sukhothai,Suphan Buri, Surat Thani, Surin, Tak, Trang, Trat, Ubon Ratchathani, Udon Thani, Uthai
Thani, Uttaradit, Yala, Yasothon.
The provinces are divided into 878 districts (amphoe), 7,255 rural administrative
subdistricts (tambon), 75,032 villages (mooban).
Local Administration or Local Administrative Organization is classified into two
types including;1)

The general type
1.1 ) Provincial Administration Organization / PAO (ong kan borihan suanchangwat) : 76 organizations.
1.2 ) Municipalities (thetsaban) : 2,441 organizations.
1.3 ) Sub-district Administration / SAO (ong kan borihan suan tambon):5,334
organizations2) Special status cities
2.1) Bangkok Metropolitan Administration
2.2) The city of Pattaya

3.2

THAILAND DISASTER PROFILE
Due to its geographical location, Thailand has been highly exposed and vulnerable tonatural disasters caused by hydro meteorological hazards such as floods, landslides, storms,
droughts, etc. The major disasters that had occurred and claimed hundreds of lives as wellas causing significant material loss in Thailand as follows: (DDPM, 2015)
1) Flood
2) Drought3) Landslides

114) Earthquakes and Tsunami5) Storms
6) Fires
7) Forest Fires and Haze
8) Transportation Hazards
9) Contagious Disease
The past major disasters are as follows:Typhoon Harriet in Surat Thani Province (1962, Death : 911)Typhoon Gay in Chumporn Province (1989, Death : 537)



Major Landslides in Northern and Southern Part of Thailand (1988 and 2001, Death :361)

The Indian Ocean Tsunami (2004) had happened in the coastal communities ofThailand‟s southern provinces along the Andaman Sea rim where the death tollreached 5,395 and 2,817 missing.

The 2011 Mega Flood (2011 – 2012) was Thailand‟s most catastrophic flood, 64 out
of its 77 provinces including Bangkok, a total of 5,247,125 households or 16,224,304
people were affected; the death toll reached to 1,026 people and total economic
damages and losses stood at 1.44 billion Baht (US$ 45.7 billion approximately).



Flood in the Southern of Thailand (2016 – 2017) since 1stDecember 2016 to 12th
February 2017, continuous heavy rain influenced by low depression and the strong
northeast monsoon have caused a widespread flooding in southern region ofThailand. The flood has affected 12 provinces. The floods have impacted 12
provinces, 129 Districts, 835 Sub-districts, 6,307 villages and affected 587,544
households and over 1.8 million people. Damages have been reported to 99 people
were confirmed dead, 4,314 Places of roads, 348 bridges, 126 weirs,2 reservoirs, 165
government facilities, 2,336 schools and 98 mosques.



The Minister of Interior decided to raise the level of emergency and incident
management to level 3 (Large scale disaster) on January 5th 2017 and set up a frontline Emergency Operation and Coordination Centre in Suratthani Province within
DDPM regional office. Activation of the National Disaster Command Centre; where
the Minister of Interior is appointed as the Incident Commander, is established at
DDPM Headquarter.



Severe Drought : 1979, 1986, 2005 and 2014

12

3.3

THAILAND DISASTER MANAGEMENT SYSTEM

3.3.1

Overview:
The disaster management system in Thailand is based on the Disaster Prevention

and Mitigation Act 2007 (B.E.2550) and the National Disaster Risk Management Plan 2015
(B.E.2558). The national Committee on Disaster Prevention and Mitigation, is composedof disaster management related ministries, agencies as well as the academia, is the top
policy making body. The National Committee is chaired by the Prime minister. Department
of Disaster Prevention and Mitigation is the Secretariat and executive arms of the National
Committee.
3.3.2

Essences of Disaster Prevention and Mitigation Act 2007 (B.E.2550)
This act has come into force on 6 November, 2007. As the principal legal mechanism

for disaster management practices in the country, the Act has provided statutory framework
to ensure a coordinated and seamless multi – stakeholder collaborative efforts. The essenceof this Act includes;
1) Scope of Disaster
Under this Act, “disaster‟ has been defined to include all types of disasters bothnatural and man – made in nature, any other incident, or accidents which are harmful to lifeof people or inflict damage on property of the people and of the state, and also includes air
threat and sabotage actions.
2) Disaster Management Structure
Under this Act, disaster management practice in Thailand can be classified into
four levels, viz ;2.1) Policy
To use a plan developed by planning authority at each level as a means tointerpret disaster management policy into action which includes ;• National Disaster Risk Management Plan : This plan has been developedby the National Disaster Prevention and Mitigation Committee.
• Provincial Disaster Risk Management Plan
• Bangkok Metropolitan Disaster Risk Management Plan
Provincial and Bangkok Metropolitan Disaster Risk Management Plans aredeveloped by respective planning committee. Both plans should be consistent with the
National Plan, and will come into effect upon an approval of the respective governors.

132.2) Incident Commander Level• The Prime Minister or the Deputy Prime Minister whom assigned by
the Prime Minister is responsible for all commanding functions in the event of catastrophic
disaster.
• Interior Minister, as the National Incident Commander is responsible forcontrolling and overseeing disaster management efforts nationwide according to the National
Disaster Risk Management Plan.
• Permanent Secretary for Ministry of Interior, as the Deputy National Incident
Commander is responsible for assisting the National Incident Commander in controlling andoverseeing disaster management efforts.
2.3) Disaster Management Level• Central Mechanism : Department of Disaster Prevention and Mitigation has
been designated as the lead national agency responsible for realization of integrated andcoordinated efforts for disaster management.
• Local Mechanism : Provincial government, district, and local administrative
organization (Sub district administration organization, Municipality, Pattaya City, and
Bangkok Metropolitan Administration) are responsible for carrying out disaster management
activities within their respective jurisdictions.
2.4) Operational Level
The local administrative organization is tasked to function as local emergency
response unit and to coordinate emergency management across a range of stakeholders.
And in case when the scale and intensity of actual disaster go beyond their capabilities todeal with, they are required to request for assistance and support upwards through the chainof command
3.3.3

Essence of National Disaster Risk Management Plan 2015 (B.E.2558)
This national plan has been approved by the cabinet on 31 March, 2015. Subsequently,

all relevant agencies are required to use this plan as a blueprint, framework and guidelinein addressing all phases of disaster management in a country. The essence of this national
plan includes:
1) Conceptual Framework
Through an application of inclusive disaster risk management concept and buildingback better and safer principle, this National Plan has been translated into concrete action ina proactive and sustainable manner. Additionally, it has strongly emphasized joint inclusive
efforts across all sectors of society to develop and enhance disaster risk management14

capacities, promote and strengthen community resilience and preparedness, including
promoting inclusive and sustainable post – disaster recovery and reconstruction andinternational cooperation for disaster risk management to meet internationally recognized
standards.
2) Disaster Risk Management Strategy
2.1) Focusing on Disaster Risk Reduction2.2) Applying Integrated Emergency Management
2.3) Enhancing the Efficiency of Sustainable Disaster Recovery
2.4) Promoting International Cooperation for Disaster Risk Management
3) Level of Emergency and Incident Management
In Thai context, level of emergency and incident management is classified into
four levels based on a wide range of parameters, including areas affected, size and severity
level and complexity, number of population, existing capacity for emergency management
as well as the availability and capability of resources. The activation levels are as follows:

Source: DDPM

15

It is essential to make use of one of or the combination of the aforementioned
parameters when submitting a proposal for upgrading the level of emergency and incident
management to level 3 or level 4 to be considered by the National Incident Commanderor the Prime Minister respectively as the case may be.
4) Emergency and Incident Management Mechanisms

Source: DDPM

16

CHAPTER 4: SAFETY CULTURE NETWORKING

4.1

INTRODUCTION
Defining “safety culture” has been a problem because its definitions are different

dimensions of each organization culture.
The term safety culture can be traced back to the 1986 nuclear explosion at Chernobyl,
two explosions led to the release of molten core fragments of the Chernobyl-4 nuclear reactor
and fission products into the atmosphere. It is noted as one of the worst commercial nuclear
power accidents in history. The International Safety Advisory Group (INSAG), an advisorygroup to the International Atomic Energy Agency (IAEA) tasked with investigating the Chernobyl
accident, used the term “poor safety culture” to identify factors contributing and leading up to
the Chernobyl accident (Cole, Stevens-Adams, & Wenner, 2013)
INSAG defined safety culture as safety culture is that assembly of characteristics
and attitudes in organizations and individuals which establishes that, as an overriding priority,
nuclear plant safety issues receive the attention warranted by their significance. This
statement was carefully composed to emphasize that safety culture is attitudinal as well as
structural, relates both to organizations and individuals, and concerns the requirement tomatch all safety issues with appropriate perceptions and action (INTERNATIONAL ATOMICENERGY AGENCY,1991)
Although INSAG borrowed the term „culture‟ from anthropologists, there is no mentionof any other bodies of literature in their report. Thus, it can be inferred that the safety culture
literature did not originally develop theoretically from organizational culture. INSAG claimed
that „the phrase safety culture refers to a very general matter, the personal dedication andaccountability of all individuals engaged in any activity which has a bearing on the safety of
nuclear power plants‟. However, the group left the meaning of the term open to interpretationand did not provide guidance as to how this construct could be assessed; a fact that stillplagues this concept today. (Cole et al., 2013)
INSAG defined safety culture as “that assembly of characteristics and attitudes inorganizations and individuals, which establishes that, as an overriding priority, nuclear power
plant safety issues receive the attention warranted by their significance.” This definition highlights
two major points: First, while safety culture is about good safety attitudes, it is also about
good safety management established by organizations and second, good safety culturemeans assigning the highest priority to safety. The INSAG report presented the concept ofsafety culture as it related to both organizations and individuals, but it did not provide a link
between safety culture and measures of safety performance. Safety culture represents longterm attitudes, beliefs and the stable ways in which people behave (Cole et al., 2013)17

A variety of definitions has been proposed , a widely cited working definition being
suggested by U.K. Health and Safety Commission “the product of individual and groupvalues, attitudes, perceptions ,competencies ,and pattern of behavior that determine
the commitment to, and the style and proficiency of, and organization‟s health and safety
management” (Gledon,Clarke &Mckenna, 2016)
As its definition depends on individual perceptions being share within group,
organizational or society context, safety culture is essentially a social phenomenon.
This feature is reflected in many definitions, for example, Cox and Cox (1994) and HSC(1993a) both referred to “shared perceptions of safety” and Cooper and Philips(1994) to“a collective commitment of care and concern” Definition of organizational culture alsoemphasize its shared or social natural (bate,1984;Schien,1985). However, Turner (1991)
noted that whilst safety culture has important social dimensions its also has technicalaspects, which should not be overlooked; he emphasized the nature of safety culture
as sociotechnical rather than wholly social. (Gledon et al, 2016)
Eedgar H. Schien said that culture can be analyzed at several different levels,with the term level meaning the degree to which the cultural phenomenon is visible tothe observer. These level ranges from the very tangible over manifestations that you can
see and feel to the deeply embedded, unconscious and basic assumptions. In between
these layers are various espoused beliefs, value, norm and rules of behavior that membersof culture use as way of depicting the culture to themselves and others. The three major levelof culture analysis are:
1. Artifacts•

Visible and feel able structures and processes•

Observed behavior-

Difficult to decipher

2. Espoused Beliefs and values•

Ideals, goals, values, aspirations•

Ideologies•

Rationalizations-

May or may not be congruent with behavior and other artifacts

3. Basic Underlying Assumption•

Unconscious, taken – for granted beliefs and values-

Determine behavior, perception, thought, and feeling

Tuangporn Wonengtrakul said that even if the definition of Safety which is thinking
and believe that imbedded in member of organization that used to be operational guidelineby do not write to be procedure. Safety culture is a sub culture of corporate culture thathighlighting the organization should have a strong culture that can lead to be successful.

18

Due to safety culture is a part of cooperate culture. Safety culture is encapsulated bycooperate culture that expresses its characteristics according to scope or restrictions related
to safety. Thus, defining safety culture are different dimensions of each organization culture.
As DDPM by Disaster Prevention and Mitigation Policy Division has definition ofsafety culture for driving “Safety Thailand” agenda that safety culture means the behaviorof people in society that shows the nature and attitude about safety. The important factorof strengthening safety culture is raising a sense of safety (Safety Mind) that means creating
incentive and inspiration to people in safety living as well as creating consciousness andbehavior in safety living without force.
Therefore, in term of this research is about safety culture related disaster risk reduction
and disaster management.

4.2

SAFTY CULTURE NETWORKING IN JAPANMain stakeholders in Japan disaster management are three sectors as follows:
1. Public sector
1.1 National government
1.2 Local government
2. Citizen sector / civil sector
2.1 Community Disaster Organization
2.2 Individual Volunteer
2.3 NPOs and NGOs
3. Private Sector
3.1 Private companies

One interesting characteristic of Japanese disaster management system is the assumptionthatpublic-sector

organizations(mainlynational

and

local

governments)

serve

as the key actors in a disaster. This assumption and experience of two major disasters has
undergone a significant change based on the experience of two major disasters in the past
two decades: the 1995 Kobe earthquake and the 2011 Tohoku disaster. Both within theofficial disaster – management framework as well as among the general public, that civilsociety organizations play a vital role in managing risk disaster. (Okada, 2015)
The 1995 Kobe earthquake was the first key momentum for such change. Contributions
by volunteers and voluntary organization in disaster response and reconstruction cameto be widely recognized. Masaaki Honma and Masayuki Deguchi called this phenomenon a.
“volunteer revolution” (1996). In response to the claim that effectiveness and efficiency ofthese organizations will greatly enhance with official recognition, the government of Japan
enacted its first law for nonprofit organization in 1998 (Law to Promote Specified Nonprofit
19

Activities). The number of organizations that have gained legal status under this new law has
steadily risen. The term “NPO” is now widely used around Japan. When earthquake andtsunami struck northeastern Japan in 30111, civil society organizations were again very
active. The government of Japan is now taking steps to recognize the role of civil society
organizations in its disaster management system and plans. (Okada, 2015)
To provide a supportive environment for disaster reduction volunteer activities,
the Cabinet Office provides information volunteers can use in their efforts, as well as facilities
for the exchange of information and views. The Cabinet Office also provides local governments
receiving volunteer assistance with information and expertise, and promotes wide area
collaboration among volunteer activities when disasters strike. (Cabinet Office, 2015)
Disaster Countermeasures Basic Act had stipulated improvement of the environmentof the volunteers‟ disaster reduction activities as one of the issues that national and local
governments have to consider. However, in recent disasters including Great East Japan
Earthquake, many volunteers have proactively worked hard and played important roles.
Such roles are expected to grow even further in the anticipated large-scale disasters
occurring. (Cabinet Office, 2015)
As such, in view of the importance of volunteers‟ work, it was clearly defined that,the national and local public entities must work closely with volunteers while respecting theirautonomy, in the new version of the Basic Act in 2013. (Cabinet Office, 2015)
Creating safety culture in Japan Communities is disaster reduction activities of citizen
sector/civil sector. Dr. Shohei Beniya said the type of Civil Sector organizations as shown:

Characteristics

ExamplesLocal organizations- Organization in- Neighborhood community(Communities)

community or(Neighborhood association)neighborhood, that bound- Parent-teacher

by common destiny

association(bilateral)- Women‟s society- Local voluntaryorganization for disasterprevention

Special interest organization- Organization bonded by- Voluntary organizations,(Association, Multi-regional

special interest or

NPO,NGO

organization)

voluntary activities- Professional(Unilateral)

organizations like20

Characteristics

Examplesengineer or medical staff- Special interest
organization like welfare orinternational exchangeIntermediary (Support or- Organizations which- Intermediary

coordinate organization)

support other civil- Disaster Voluntaryorganization in finance orCenterinformation)- Social welfare council

Types of Volunteer Organization as mutual aid in local communities in Japan are as
follows:
1)

Community Disaster Organization
1.1

Community Firefighting Team : 856 thousands members (Female Fire
Corp Volunteers : 23,899 members ( 2016)1

1.2

Community Flood Prevention Team : 14.105 thousands members 2

1.3

Local Voluntary Organization / Voluntary DRR Organization : 161,847
organizations (2016)3

2)

Individual Volunteer: approximately 1,417,000 people (December,2014) at theGreat East Japan Earthquake 4

3)

1)

NPOs and NGOs

Community Disaster Organization
Disaster Countermeasures Basic Act (1961) assigns that for policy consideration,

the nation government and local government shall encourage people to engage in voluntarydisaster prevention activities by fostering voluntary disaster prevention groups and shallenhance the environment for disaster prevention. And this act assigns the mayor of the cityor town or the head of the village shall effort to develop fire department, flood brigade andother organizations, and to improve disaster relevant organization and Voluntary DRR
Organizations in the municipality and promote voluntary disaster risk reduction activities
of residents in order to fully utilize functions of municipality.

1

White Paper Disaster Management in Japan 2017
White Paper Disaster Management in Japan 2017
3
White Paper Disaster Management in Japan 2017
4
Documents of Manabu Sako, Chairman of National Volunteer and Civil Service Promotion
Center Manager of Regional Welfare Department of Japan, National Council of Social
Welfare (Social Welfare Service Corporation)
2

21

Community Disaster Organizations which are people to engage in voluntary disasterprevention activities.

Government and local government shall encourage their activities.

There are Community Disaster Organizations in Japan as follows:
1.1)

Community Fire Fighting TeamFire Fighting System in Japan are under the Fire Defense Organization Law(1947), assigning the principle that fire services are based on local government (cities, towns
and villages) and cooperation from the national government, prefectural government andmunicipality. Major activities are Firefighting Operation, Rescue Operation, Flood Prevention
Operation Activities, Fire Prevention and Ambulance Operation.
Fire and Disaster Management Agency (FDMA) as national government is
responsibility for prevents or mitigates damage due to various disasters including fires,
earthquakes, storms, and floods. In part of fire service, its duties are basic firefighting
measures and policies, providing technical advices and education and training, conducting
research and effective use of emergency fire response teams during large-scale disaster.
Fire Departments are under each prefectures and municipality. Fire
Departments in prefectures provide fire defense education and training; some of them havetheir own school. And Fire Departments in municipalities (cities, towns and villages) haveinitiate fire service unit and carry out initiate fire service activities.
Community Fire Fighting Teams are acting under the slogan “Protection of ourcommunity by ourselves”. Their duty is carrying out fire defense activity in community; they
initiate response to disaster on the front line. Likewise the fire departments and stations,
volunteer fire corps in Japan also are organized by municipalities. Different from the first two,
volunteer fire fighters are not professionals and engaged in firefighting as secondary
occupation. The fire corps is independent from the fire departments and fire stations andthere are no top-down relationships between these two. However, in cases of where the fire
corps are called out in emergencies, they must follow the orders of the chief of the fire
department or fire station. For the volunteer fire corps, the basic rule is one corps in one
municipality. However, there are municipalities that have established more than one corps(most of “designated cities”) and those that have not established the corps (Osaka city, andsome towns and villages in Aichi Prefecture). (NAZAROV, 2011)
Every member of the volunteer fire corps has their own regular job, but are
active day or night protecting their own town by themselves, deeply rooted in the spirit of their
devotion to their hometown. While they are involved in firefighting activities, they are also
there to protect the lives, physical being and properties of local residents from natural
disasters such as earthquakes, wind and water damage through rescue efforts, warning
patrols and evacuation guidance. even when there is no disaster present, volunteer fire corps
organize numerous community-based activities designed to improve fire and disaster22

prevention capabilities, as well as rejuvenating their local community. Female volunteer fi recorps participate in areas that have been predominantly female-oriented, including home
visits to early people for fi re prevention, and holding fire prevention classes at kindergartensand elementary schools (FDMA)
They are not complete voluntary organization but they are special part-time
local government officers. Unlike firefighters who engage in firefighting professionally, they
are local residents who have their own professions and also participate in the volunteer fire
corps.
Moreover, if they are damaged by disaster, they or their family can getcompensation from government. For example, Volunteer Fire corps member in Tokyo
Metropolitan Government will receive:Rewards, etc.: They receive a specific salary every year, and receive compensation
when they engage in disaster relief activities and training.



Official duty subsidies: When they are injured during their duty, there arecompensation systems for damages during official duty.

Awards: According to their merits and achievements, the director-general of the
TFD and the governor of Tokyo can give awards.

Retirement allowance: After a certain period of time, retirement allowance will be
paid after leaving the volunteer fire corps.

Trends in Numbers of Fire Corps Volunteers

Source: White Paper Disaster Management in Japan 201723

Trends in Age Composition Ratios among Fire Corps Volunteers

Source: White Paper Disaster Management in Japan 2017

1.2)

Community Flood Prevention TeamIn Japan, people have long worked on flood-prone alluvial plains and carriedon various types of productive activities to sustain their lives. The historical experience of
the Japanese has developed two principal components of flood risk management: (i) "flood
control" (Chisui) by means of river improvement and (ii) "flood fighting" or "flood damage
prevention" (Suibo) as a human activity to protect human lives and property from ongoing
and approaching flooding to minimize the damage. (IWR, 2011)
Flood fighting activities are conducted by volunteer-based flood fighting teams
which are commonly established in each municipality. A flood fighting team is developed
and managed by the traditional self-governing body of a village, etc. Its members arenormally engaged in different jobs but are also involved in patrolling, watching out andlevee protection work. During peace time, they still conduct patrols and the inspectionof levels, provisions for flood fighting warehouse and for communication facilities, drills
and other activities in preparation for a flood. (IWR, 2011)
They are not complete voluntary organization but they are special part-timeofficer and receive very few salary. Moreover, if they are damaged by disaster, they or theirfamily can get compensation from government. They are under Law on Flood Prevention.

24

Trends in Numbers of Flood Fighting Corps Personnel

Source: White Paper Disaster Management in Japan 2017

1.3)

Local Voluntary Organization / Voluntary DRR Organization
Local Voluntary Organizations are community based. They are various andestablished by residents and community organizations such as neighborhood community,neighborhood association, women‟s society, resident association of condominium/school
zone, etc. These volunteers work based on the spirit of neighborhood cooperation and do not
get any salary or any compensation. However, the municipality can subsidy to them forpurchasing equipment and provide compilation of guidebooks to organize Local Voluntary
Organization
They are responsible for various activities for disaster prevention as follows:

Group Name

Role at usual condition

Role at disaster time

General- Coordination and Report- Coordination and Report- Information management of- Information management ofInformation

the vulnerable people

damage, shelter, etc.

- Information collection- Information collection- Sending message- Sending message

25

Group Name
Fire Extinction

Role at usual condition- Checking equipment

Role at disaster time
- First fire extinction activities- Fire prevention education
Search and Rescue- Organizing and checking
equipment- Search and rescue aid

Evacuation- Organizing and checking- Evacuation support forevacuation route and signs
Food and water- Checking equipment

residents- Distribution of food andwater- Kitchen management

Source: Documents of Dr. Shohei Beniya

Trends in Voluntary Disaster Management Organizations

Source: White Paper Disaster Management in Japan 20172)

Individual Volunteer
Individual Volunteer means individuals who go to affected areas at their own initiative

to provide those affected by the disaster with support, without being affiliated to an organizationof some kind are referred to here as individual volunteers. In most cases, the task of receiving
these individual volunteers and allocating duties to them is carried out by the Disaster Volunteer
Centers established by social welfare councils in disaster afflicted areas. (White Paper Disaster
Management in Japan, 2017)26

Municipalities and prefectures have each their Social Welfare Councils which are
special NPOs authorized by Social Welfare Act. Social Welfare Councils shall establish
Disaster Volunteer Centers which is temporary organization to coordinate individual volunteer
in each affected area. When individual volunteers register with Disaster Volunteer Centers,
they shall receive volunteer accident insurance .At present some Disaster Volunteer Centers
have permanent organizations such as Mie and Kyoto, they provide education program innormal situation.
Disaster volunteer centers are established in affected areas and volunteers participate
in relief activities. These centers seek relief activities by focusing on victims and making
efforts to participate in timely activities via networks. Their major role is coordination between
welfare organizations, welfare experts and local goverment including managing their own
welfare facilities and providing welfare services.

3)

NPOs and NGOs
A nonprofit organization (NPO) is different from an administrative agency, the activitiesof which are supported by taxes and which aims to provide social services evenly and fairly
to everyone. NPOs, as their name implies, also differ from corporations in that profits are nottheir goal.
In 1995, the Great Hanshin Earthquake is the key momentum, NPOs and NGOs
were active and played important role to support affected people instead of damaged
municipalities. There were some organizations established for supporting affected people.

NPOs and NGOs could visit and support immediately, because they had experienceand strong back up system. They played some public roles delegated by local governments
and requested the government to authorize NPOs by law.
Non – Profitable Organization Law was established in 1998. The purpose of this law
is to promote the sound development of specified nonprofit activities in the form of volunteer
and other activities freely performed by citizens to benefit society, through such measures as
the provision of corporate status to organizations that undertake specified nonprofit activities,(as well as establish a system to recognize specified nonprofit organizations that arecontributing to the advancement of the public welfare and whose management system andactivities are reasonable) and thereby to contribute to advancement of the public welfare.
The legal status of the NPO Law is as a special law under Article 34 of the Civil Code,which prescribes the establishment of public interest corporations. Although public interest
corporations are part of a system under the competent authorities, NPOs are different inthat they acquire their nonprofit corporation status through a system of certification under
the concerned authorities (similar to a standards-based approach). As it is a special law
27

under the Civil Code, however, nonprofit activities are restricted to specific areas.
In part of tax issues, the first is corporation tax. The duty to pay certain taxes arises
upon incorporation as an NPO. NPOs are generally exempt from the corporation tax(a national tax), but any income they have from profit-making activities as stipulated under
the Corporation Tax Law is subject to the same tax rate as a company. NPOs must file
the required corporation tax paperwork at the tax office. The seconds is tax system for
donations. No particular tax benefits are available if an individual or a corporation makesa donation to an NPO. The following tax breaks are provided in the case of donations
made to a certified NPO.
Although NPOs is corporate status and manage their estate, tax, collecting donation,etc. but NPOs operation is different from the government that they can support affected
people freely and without equally. But the government must support affected people equally.
In addition, the one momentum of the Great East Japan Earthquake of 2011 is Japan
Voluntary Organizations Active in Disasters (JVOAD) established in 2016 for supporting
NPOs and NGO to coordinating of sharing information by assessing unidentified affected
people and solving remaining problem as well as making connection with people, materials,
fund, and information to those who require them as well as creating opportunities to collaboratesuch as training, lecture, national forum, etc. (Original model is NVOAD in USA)The Japan Voluntary Organizations Active in Disaster (JVOAD) enhances collaboration
among the government sector, the NGO/NPO sector, and the corporate sector in order to
respond more effectively and collaboratively against future emergencies in Japan. JVOAD
coordinates assistance between supply from NPO/NGO and demand of survivors in disasters,
and between local governments and NPO/NGO. Ordinary time, JVOAD conducts exercise ofcoordination and offering opinion to governments.
Activities of JVOAD are as follows:
1) Activities at affected are
At disaster time, working as coordination function together with stakeholder in
affected area for promoting support activities in accordance with local need without missing
or bias support-

To make total assessment of needs of the affected people / residents/communities and support situation-

To share information with support organizations and make coordination

among support organizations-

To make recommendation of support for reconstruction and recovery andevaluation of overall support.

282) Activities at ordinary time-

Preparedness for coming disaster-To strengthen collaboration with civil sector including NPOs, volunteer center, etc.

-

To strengthen collaboration across supporter including business, public,

academic and civil organizations.
-4.3

To create relationship with communities and strengthen network.

SAFETY CULTURE NETWORK IN THAILAND
National Disaster Risk Management Plan 2015 assigns the one target of disaster risk

management is to increase public safety awareness through highlighting the creation of bodyof knowledge, awareness, and safety culture as well as developing local and community
capacity gearing towards building community resilience to disasters.
Above target is consistent nationwide concept of operations to enable national andlocal administrative organization, private sector, and other sectors of society to collectively
implement disaster management activities in an integrated and systematic manner, and in
the same direction. And it is to compile the current internationally – recognized guidelinesand directions and are used worldwide for disaster risk management that can be applied
to disaster risk management in Thai context and to be used in the development of relevantplans at different levels of government such as Provincial Disaster Risk Management Plan,
Bangkok Metropolitan Administration Disaster Risk Management Plan, including Disaster
Management Action Plan of the local administration organizations and Emergency Support
Function Plans to enable these local authorities to more efficiently and effectively deal withdisasters. Moreover, it is to develop and enhance capacities for disaster risk management
which encompasses disaster risk reduction, emergency management and building backbetter and safer at community, local, national and international levels to further minimize
the potential losses from disasters.
This article comprises of agenda on SAFETY THAILAND Policy and Projects andActivities related safety culture networking in Thailand community.

4.3.1

Agenda on SAFETY THAILAND Policy
The Industrial Revolution marked a major turning point in the world. Thailand has

developed industrial rapidly and regardless of social and environmental impacts. It has social,economic and cultural impacts in life aspect of human.
The most noticeable is that the average income and population increase rapidly
leading to expansion of urban areas, social change and coming into a population aging
society and migration. These cause many social problems such as traffic accidents, habitat,29

slum, pollution, and spread of germs, crime, child labor, insecurity in workplace, etc.
In addition, the industrial revolution also resulted in the climate change caused by increasingof greenhouse gases which is due to the expansion of the manufacturing. All of the abovementioned problems lead Thailand faces increasing disaster risk as "Natural disasters"and "human-induced disasters", and also more complexities in disaster risk management
Disaster cause huge impact on Thailand including economics such as Thailand's
income declined, the profit of sectors declined such as industry and tourism. The government
assumes the expenses for affected people, famine and recovery. Moreover, there is affected
agriculture as agriculture, farm, animal husbandry, animal transport, as well as seed storage,
barn plants. There are social impacts, such as hazards and damage of life and property,
dwellings, lack of income and utilities damaged such as Telegraph, telephone, electricity,water supply and drainage systems. Public buildings damaged, such as bus stations,airports, schools, temples, architecture and fine art. It also damages public health, risk ofpandemic such as foot bites cholera including stress, anxiety. And environmental impact,degradation of resources and environment ecological and food chain imbalances and foodshortages.
Therefore, to prepare for increasing disaster risk, the prime minister mandated
Department of Disaster Prevention and Mitigation (Ministry of Interior) to be the principal
government agency to integrate the enhancement of safety standard and knowledge creation
so as to sustain Thailand‟s habitability safety which under “SAFETY THAILAND” leading
Thailand to be safety for living and tourism and ready for prompt and effective response.
Since 2015, Thailand is under policy of “SAFETY THAILAND” which accelerates
the building of safety culture in Thai society and compels cooperation in concrete
management in all sectors and all agencies of Thailand in order to achieve the importantgoals for providing safety to Thai people. DDPM, as the central government agency
to operate any related activities on national disaster prevention and mitigation, realizes
the importance of developing safety culture in Thailand and to push forward “SAFETY
THAILAND”
DDPM by Disaster Prevention and Mitigation Policy Division has imposed the principle
for driving “SAFETY THAILAND” agenda as follow
1. Related Concepts.
There are 4 related concepts for driving “SAFETY THAILAND” policy as follow:
1) The Sufficiency Economy Philosophy of His Majesty the King of Thailand.
2) Sustainable Development.
3) Sustainable Development Goals (SDGs).
4) Disaster Risk Management.

30

Due to change of economic, social and environmental, Thailand has a higher
disaster risk. The Sufficiency Economy Philosophy is a major development concept to get off
with these problems. Characteristic of Sufficiency Economy Philosophy is self – immunity
which is preparing for the impacts of change by considering the possibility of situationsin the future. This philosophy is in line with Sustainable Development Concept accepted
worldwide. Sustainable Development has three basic components as follows: economic,
social and environmental and all three elements are related.
At present, the United Nations has set development goal based on conceptual
framework of economic, social and environmental dimensions. Sustainable Development
Goals (SDGs) is the development directions since September 2015 to August 2030, withcover a 15-year period, and comprising 17 targets. For example, the 3rd Goal ensures
healthy lives and promotes well-being for all at all ages. The 6st Goal ensures access to waterand sanitation for all. The 8th promotes inclusive and sustainable economic growth,
employment and decent work for all. The 13th takes urgent action to combat climate change
and its impacts. And the 17th revitalizes the global partnership for sustainable development.
For Disaster Risk Reduction (DRR), currently approved by internationalorganizations, is the "Disaster Risk Management (DRM)" principle for Prevention, Mitigation
and Preparedness and Emergency Management, Response ,Relief, Recovery (Rehabilitation
and Reconstruction) ,and Build Back Better and Safer.
Driving agenda on SAFETY THAILAND is consistent with the Philosophyof Sufficiency Economy which is the main concept of Thailand development and also
the concept of Sustainable Development and Disaster Risk Management. All lead to achieve
the Sustainable Development Goals (SDGs) which is the main target of development in
193 countries of the United Nations, was adopted on 25 September 2015.
2. Definitions, concepts and scope of action.
DDPM by Disaster Prevention and Mitigation Policy Division prescribes “SAFETY
THAILAND” framework” is to develop Thailand to safety in all areas trough collaboration
for disaster risks reduction and building immunity aiming to good quality of life and sustained
growth. Driving the “SAFETY THAILAND” agenda has related sections as follow:
1) Agriculture2) Tourism industry
3) Industry, trade and investment
4) Infrastructural5) Education
6) Public health7) Housing31

3. Driving scheme
There are 2 main schemes to driving “SAFETY THAILAND” agenda;
1) To develop Safety Standard“Safety Standard” is documents related to building safety by mutual agreement
and acknowledge organizations have approved it. These are general rules, guidelines,
or characteristic or result specifications of activities which are used as the rules. Therefore,
sectors need to develop and emphasize safety standards for implementation guidelineof disaster risk reduction.
For International Standards on disaster risk management, Sendai Frameworkfor Disaster Risk Reduction (2015 – 2030) is a framework adopted by many countries. It focuseson disaster risk reduction and reducing loss of life, health and well-being, and loss of physical,
social, environmental assets of individuals, businesses, communities and countries. The goal
is to prevent new risks and reduce the risk with integration by part of economic measures,
structures, laws, health, culture, education, environment, technology, politics, and institution
approach, as well as disparity reduction to prevent and reduce exposure and vulnerability,
and also response preparedness and rehabilitation. These lead to prompt and effective
countermeasures.
As part of Thailand's Standard are as follows: the Disaster Prevention and
Mitigation Act 2007 (B.E.2550) is the basic law in disaster risk management which ismechanism to drive agenda on "SAFETY THAILAND ". This Act assigns the Department
of Disaster Prevention and Mitigation (DDPM) to formulate Thailand‟s national plan indisaster management. National Disaster Risk Management Plan B.E. 2558 (2015), approvedby the Cabinet on March 31, 2015, is the implementation of development concept ofprevention, preparedness and creating immunity system by developing knowledge andstrengthening the community in monitoring and responding disaster, living in harmony withnature and creating the self – immunity to the communities in line with an approach entitled“sufficiency economy philosophy”. As well as, the concept of Sendai Framework on disasterrisk reduction is resilience through creating and enhancing awareness of disaster risk
reduction (before, during and after disaster) and proceedings according with the Disaster
Prevention and Mitigation Act 2007 (B.E.2550).
Moreover, Thailand has specific rules, regulations and laws relating to safety
for specific areas or sectors, such as the Occupational Safety and Health Act 2001, the Building
Control Act 1979 and the National Accident Prevention Policy.
It can be said that International Standards and Thailand's Standard are both
imperative to emphasize that all sectors comply with strict standards leading Thailand to besafety and sustainable city through the mechanism of the National Disaster Prevention and32

Mitigation Plan And the national accident prevention plan which are for action framework.
2) To promote safety culture
Safety culture means the behavior of people in society that shows the nature
and attitude about safety. The important factor of strengthening safety culture is raisinga sense of safety (Safety Mind) that means creating incentive and inspiration to people insafety living as well as creating consciousness and behavior in safety living without force.
Awareness is cannot be created or cultivated in a short period of time. But it
is molded with a personality for a long time to create a consciousness and behavior sincea child born and educated by parenting, school, various materials and workplace.
As an approach for Safety living in individual and communities need to beserious cooperating with all sectors and promoting safety behavior which is to encourage
the public in all activities.
There are two methods to creating “safety culture” in Thailand; the first is to
educate people to understand it for raising awareness and changing behavior and cultivating
safety culture. Theses lead to changing society for the better. The second is to formulate
regulations rules and orders for encouraging people to change behavior and society. Finally,
all these lead to safety culture in Thailand.
4. Using Pracha Rat Mechanism to drive the policy
Pracha Rat Mechanism is driving disaster management through people-centereddevelopment and promoting all section in disaster reduction as well collaborating with
network to disaster countermeasure including encouraging people to have knowledge,
awareness and participate in disaster management.
Using Pracha Rat Mechanism to drive “SAFETY THAILAND” policy is toencourage all sectors participate in development through Good Governance. A combinationof Pracha Rat from four sections as follows:
1) Government sector as the government , government agencies and public officer
2) Public sector as people, student, village headman and civil defense volunteer
3) Private sector as industrial, trade, investment, companies, foundations, nonprofit organizations and materials
4) Local administrative organization
For example, driving “SAFETY THAILAND” in the school by the various sectors
can use the principle of the public as follows:
Government sector consists of the ministry of education, province, education
institution, school, teachers, education staff and related government agencies. They should
drive policy by safety course creation and safety standard establishment in school. Their

33

activities should be making disaster prevention and mitigation plan for school, creating safety
course, increasing school safety standard, enhancing capacity of teacher to educatedstudent and creating collaborative network.
Public sector consists of student, parent, people and communities near school.
They are responsible for study creation, work collaboration and safety promotion in school.
Their activities are educating and developing knowledge and skill of safety, practicing in linewith Safety, participating in drill and activities related promoting safety, educating safetyknowledge to family and communities and creating collaborative network.
Local administrative organizations are responsible for promotion and observationin school safety. Their activities are making Disaster Management Action Plan of the local
administration to usually drill, enhancing staff to be ready for training and participating in drill
and activities related promoting safety including preparedness for emergency response.
5. Goals
1) Short-term goal: To decrease loss of life and property
2) Medium – term goal: To increase amount of sectors certified by internationalsafety standards.
3) Long – term goal: People are satisfied. Thailand has a sustainable
development in line with the SDGs.

4.3.2

Projects and Activities related Safety Culture Networking in Thailand.
Network in community is initiate unit of disaster managements. The one approach tocreate safety culture is building and development of partnership network
DDPM, as the central government agency to operate any related activities on national
disaster prevention and mitigation, focuses on the mechanisms of disaster management
in communities though enhancing and developing network to support various missions asmonitoring, warning emergency response, search and rescue and assistance to Victims.
Now, DDPM realizes the importance of developing safety culture in Thailand and efforts
to develop safety culture through networking.
The Disaster Prevention and Mitigation Act 2007 (B.E.2550), Section 20 stipulates
that a local administrative organization of locality shall perform the duties on disaster prevention
and mitigation operation within the respective local jurisdiction under the responsibility ofan executive of such local administrative organization of specified locality whom appointed as
the Local Director. In addition, the local administrative organization shall perform the duties toassist the Provincial Director and the District Director as entrusted.

34

The concept of modern disaster management addresses the importance of disasterrisk reduction by focusing on people and community to participate in every operations ofdisaster management .Local administrative organizations are the closest to the people incommunity and also have the legal authority to support and promote people, networks
and volunteers in the community to participate in disaster management projects/activitiesof DDPM.
Recognizing the importance of proactive disaster risk management approach, DDPM
has continuously developed and strengthened its partnership networks, and has involved
them in all phases of disaster risk management. These partnership networks are as follows:
1) Civil defense volunteer : 1,241,718 people
2) OTOS : 76,772 people
3) Rescue Volunteer in Charitable Organization : 55,000 people / 400 organizations
4) Mr. Warning : 29,281 people5) Communities Based Disaster Risk Management (CBDRM) : 12,095 community /village6) Student Network : 10,650 people
7) Disaster Resilient Community : 350 community / village
Each network is unrelated.

1) Civil Defense Volunteer
By the virtue of Civil Defense Act 1979 (B.E. 2522) (and was abolished in 2007), Civil
Defense Volunteer corps has been organized in March 22, 1979. The main duty of Civil
Defense Volunteers is to fulfill a range of roles in disaster risk management, including
disaster preparedness, emergency response, search and rescue, evacuation, and disaster
relief assistance in accordance with their “compassion and courage – based” ideology.
The Civil Defense Volunteers are from citizen sector who sacrifice themselves toprovide the assistance to the official in disaster prevention and mitigation. Now they are
under Disaster Prevention and Mitigation Act 2007 (B.E.2550) and sector 41 of this Act
stipulates that the director shall organize the volunteer corps within the area underresponsibility to perform the duties therein:
1. Provide the assistance to the official in disaster prevention and mitigation operation;
2. Perform any other duties as entrusted by the director and in conformity with the ruleprescribed by prescribed by Ministry of Interior
The management and overseeing the volunteer, recruitment, training, right and duties,
and discipline of the volunteer shall be in conformity with the regulation prescribed by Ministryof Interior (now based on Ministry‟s Regulation of Interior on Civil Defense Volunteer 2010
(B.E. 2553)
35

The Civil Defense Volunteer Organization is under Ministry‟s Regulation of Interior
on Civil Defense Volunteer 2010 (B.E. 2553) which is in line with Emergency and IncidentManagement Mechanisms and incident commander deem to director of Civil Defense
Volunteer Center as follows;

Civil Defense Volunteer Local Administrative Center and Civil Defense Volunteer
BMA District Center shall establish following divisions;
1. Disaster prevention and mitigation division
2. Security division
3. Victims relief division
4. Rescue operation division
5. Other divisions as necessary
However according to the regulation, there are Civil Defense Volunteers in only theseorganizations as follows; National Civil Defense Volunteer Center Civil Defense Volunteer Provincial Center Civil Defense Volunteer Local Administrative Center Civil Defense Volunteer BMA Center Civil Defense Volunteer BMA District Center
The others (Civil Defense Volunteer Regional Center and Civil Defense Volunteer District
Center) which do not have volunteer, are responsibility of overseeing and supporting its
subordinate organization.

36

In normal time, the Civil Defense Volunteers are support unit for disaster preparedness
by monitoring the situation, exploring disaster risk area in community including being a goodrole model in enhancing safety awareness campaign. When disaster occurs, they are the main
force of government in urgency response, search and rescue, evacuation, etc.
For morale support, now DDPM provide them annual Honor Award. There is HonorAward as follows:
1. Reward for Excellent Civil Defense Volunteer Center held by DDPM
2. Reward for Excellent Civil defense Volunteer held by DDPM
3. Reward for Excellent Mother of Civil defense Volunteer on Mother‟s Day held by
The National Council on Social Welfare of Thailand (NCSWT)
4. Excellent National Volunteer Award held by Ministry of Social Development andSecurity Human
5. Proposal for Thai Royal Decoration to honor person who sacrifice themselves for
6. Princess Prem (Ngarmchit) Purachartra Award held by Princess Prem (Ngarmchit)
Purachartra foundation
At present, Civil Defense Volunteer Center shall pay money as expense for their working
according to Regulation of the National Disaster Prevention and Mitigation Committee on
expenditure of Civil Defense Volunteer to prevent and mitigate the disaster B.E 2560 (2017).
As the National Civil Defense Volunteer Centre at central level, DDPM has continuously
developed and enhanced the capabilities of these volunteers in performing specific disasterrisk management functions, as well as building up a prototype of disaster risk management
volunteer networks.
Example activities:
1. Observing areas where the disaster risks in community are.
2. Making hazard map and emergency evacuation routes in community.
3. Public relations the people in community.
4. Inspection and preparation of materials used in disaster prevention and mitigation.
5. Assistance affected people in community.
6. As a leader of community to provide drills in community.
7. Coordinating with local administrative organization.

372) OTOS (One Tambon One Search and Rescue Team)DDPM has realized the urgent need to setup efficient and skillful search and rescue
team at provincial, district and local levels and this initial emergency response team iscommunity – based in nature. To an effective rescue system is essential to reduce severe
injuries and loss of life at scene of the accident, DDPM has launched OTOS program whichcontains ; at the provincial level, the training of provincial SAR teams were completed andhave been assigned to be SAR instructors ; at district level, district SAR team have been
trained to become instructors as well ; at Tambon level (Thailand‟s administrative unit inbetween district and village). Nowadays, OTOS program is completed with 76,772 SAR
teams (10 members) based in each Tambon or local administration offices
OTOS members comprise civil defense volunteers who have been trained by DDPM
and Mitigation to carry out the initial search and rescue operations at the incident site in a rapid,
efficient and technically correct manner as well as in accordance with EMS system standards.
In addition, DDPM has supported each and every local administrative organization to start,arrange training and equip its search and rescue team so as to enable the team to provide
assistance to disaster victims in a timely and technically appropriate manner.
Example activities;
1. Preparation of equipment, vehicles, communication systems in emergency response.
2. Emergency response and assistance affected people.
3. First aid and moving affected people in an emergency
4. Coordinating with local administrative organization.

383) Rescue Volunteer in Charitable Organization
Charitable Organization is nonprofit organization which is person juristic according
to the Thailand Civil and Commercial Code Act. They are all subject to corporate income
tax but there are special rules to them. If Charitable Organization is certified by Revenue
Department, it is applicable for income tax exemption and tax benefits if an individual ora corporation making donation to them.
These volunteer are rescue team but some of them have medical team which are
well trained by the National Institute for Emergency Medicine (NIEM) established under
the Emergency Medical Act B.E.2551 (2008) before performing their duties.
The Disaster Prevention and Mitigation Act, BE 2550 (2007), Section 42 stipulates
that in cases where any charitable organization or person shall approach to assists the official
in performing the duties whilst a disaster occurs, the Director or the officer whom entrusted
by the Director shall be empowered to assign the task which or arrange a place where
the aforesaid charitable organization or person be able to perform and provide the assistanceas deemed appropriate for such charitable organization and person. To provide assistanceas it deems appropriate.
At present, the government attaches importance to the operations of charitableorganization especially person or volunteer who work for such charitable organizations.
The Minister of Interior assigns DDPM is core agency for developing rescue volunteer
and sets up guidelines for improving standards of rescue volunteer and overseeing them.

39

Example of Activities:
1. Providing assistance to the official in response disaster as assigned.
2. Monitoring and preparing to support rescue operations.
3. First aid and moving affected people in an emergency.
4. Coordinating with local administrative organization or government agencies.

4) Mr. Waning
In conjunction with various government agencies and NGO, DDPM has implemented
a community-based volunteer training program which aims at creating a disaster warning
network in the flashflood and mud slide prone villages. The trained villagers are designatedas “Mr. Warning” and assigned to be the “vigilant”, “fore warner” and “coordinator” in emergency
and non-emergency situation respectively. This program has been in concerted with its
preceded program, “Simple Rain Gauge Installation” program. Nowadays, “Mr. Warning”
training Program is completed with 29,281 trained people in the flood prone areas to be
trained in this program.
Mr. Warning is warning network in risk area. DDPM has trained two people in
a community (village) to be Mr. Warning who is responsible for monitoring, warning andevacuation coordination. The goal is to increase amount of Mr. Warning network in every
disasters and every areas for people receiving a quick warning and preparing the emergency
response.
They are responsible for monitoring, warning to people in community and coordinatingwith officer.
Example activities:
1. Monitoring and following the news related disaster situation in community fromgovernment agencies, materials and other communication channels.
2. Public relations in community to preparedness and how to response when disasteroccurs in community.

40

3. Checking water level, rainfall in the area. If the rainfall is very abnormal or turbid, to notify
the headman, community leaders and local immediately for considering the evacuation orappropriate action as soon as possible.

5) Communities Based Disaster Risk Management : CBDRM
DDPM has adopted and applied this appropriate people participatory approach togenerate the awareness among the general public and mobilize their participation in every
phase of disaster management so as to build safer and resilient community. In the past year,
DDPM collaborates with various government agencies, local authorities, NGOs andinternational organization. This program will be jointly organized on the continuous to cover
all vulnerable communities nation-wide. Nowadays, CBDRM program is completed with
12,095 vulnerable communities from 26,000 vulnerable communities.
DDPM promotes communities to be center in disaster management as planning,
preparing for emergency response, prevention, management, mitigation and recovery incommunity as well as enhancing their capacity to deal with disaster preceding the arrival of
the external assistance. DDPM focus on strengthening capacity of community andcomprehensive disasters to sustain a safe community.
Example activities:
1. Studying disaster in community / village as type and time line of disaster, exploring risk
area and safe area to evacuate, making hazard map for shelter location and evacuationroute assignment.
2. Making community/village disaster management plan and setting up community/village
committee, roll and duties of committee in all four phases of disaster risk management
cycle.
3. Providing community/village drill for disaster mitigation.
4. Public relations in community.

416) Student Network
DDPM provides Disaster Volunteer Youth Camp Project for training youth tounderstand disaster and increasing their disaster awareness. DDPM educates them how toself – help and help friend, family and community when disaster occurs such as basic
disaster management, first aid, how to use of fire extinguishers, how to prevent drowning andhow to rescue an active drowning victim, etc.

Source: DDPM
7) Disaster Resilient Compact Community
DDPM sets up the center for Disaster Resilient Center in community for providing
spaces and opportunities for individuals, communities, civil society and other stakeholders toparticipate in disaster risk management practices toward building community resilience todisaster such as community meeting, equipment warehouse, and gathering information of thecommunity in accordance with the community disaster such as hazard map, evacuationroutes, safety areas. The communities trained in CBDRM already can attend this project.

Source: DDPM

42

CHAPTER 5: LESSONS LEARNED FROM JAPAN, CONCLUSION
AND RECOMMENDATIONSIn this last chapter of the study comprises of the lessons learned from Japan,
conclusion and recommendations for developing safety culture networking in Thailand.

5.1

LESSONS LEARNED FROM JAPAN1. Japan provides environment for cultivating safety culture.
1.1 There are many museums related to disaster for visitors.
Museum can help Japanese people gain correct knowledge of disaster. There

are many information and materials which are attractive and easy to understand especiallyscience knowledge such as sediment disaster, tsunami and volcano.
People learn about what happened when disaster occurs. The exhibits provide
information on experience and lesson learned such as The Great Hanshin-Awaji Earthquake
Memorial, Disaster Reduction and Human Renovation Institution has exhibits of collect andstore materials relating disaster and disaster reflecting on how affected people lived.

Source : http://www.dri.ne.jp/en/centertop/center_organization

43Moreover, Tsunami Storm Surge Station in Osaka provides activity that people
can participate in experience and can enjoy learning, and realizes the importance of preparing
for disasters such as simulation room for learning about how to react when disaster occurs(earthquake or tsunami).
In addition, many government agencies participate in providing disastermuseum which show their authority in disaster operation such as Moutain Unzen – Fugen
Eruption Disaster at Onokoba Sabo Miraikan, Hyogo Prefectural Police station , Japan
Meteorological Agency (JMA) and Wakayama Sabo Research and Education Institute.

Source : ADRC

1.2 Japan provides disaster information to public such as hazard map, andguidebook. These are free copy and place in public place; people can take it back foreducating and prepared themselves in advance. Some of them can download on internet.
So, people can learn by self and share information to others such as family, friends,
co-worker, etc. These lead to widespread safety culture in community.
2.

Japan focuses on transmission of safety culture from generation to generation.
This part is important to continuing safety culture in Japan. Even disaster liketsunami and earthquake in the past claimed the live life many people, but few people knowof the tragedy and someone forget it when time gone. They make an effort to let future
generation know of the tragedy. In the past they erected stone monument‟s inscription
continuing to be well – mark to ensure it can be clearly read such as O-Jishin Ryokawaguchi
Tsunami-Ki Stone Monument and Yogo-Ji tone Monument. At the present, Japan establishes
memorial museum such as the Great Hanshin-Awaji Earthquake Memorial, Disaster Reductionand Human Renovation Institution and preserves damaged building, area and property to remindand awake safety awareness the next generation such as damaged school building, city officeand taxi at Onokoba Sabo Miraikan. They can transfer the tragedy to next generation well44

Source : ADRC

Moreover, there are commemorative museum for people who have importantrole in disaster management. These awake next generation to remind that disaster was happen
once and it maybe happen again so they have to prepare themselves through lesson learned
from history into future. At Tsunami Educational Center which established in order to handdown “Hamaguchi Goryo” and learn from the past tsunami to prepare for any oncoming disaster.
The first section is tsunami education center, visitor can learn how to protect myself from any
future tsunami disaster by playing game and watching movie about the horror experienceof tsunami. The second section is the history of tsunami and “Hamaguchi Goryo” including“the fire of rice shaves”. All are mirror an expression of disaster management thinking in Japanas the circle of disaster management and the role of private sector especially business
continuity plan (BCP).

Source : ADRC

3.

Japan focuses on cultivating safety culture in childhood.
According to the Disaster Countermeasures Basic Act, the national government

and local governments shall make efforts in disaster education and training to prevent
disaster occurrence and prevent expansion of disaster. Japan children educate disasterknowledge and drills from school. And many schools are evacuation place, so children canlearn and recognize it by themselves.

45

Moreover, Japan promotes family has participate together in disaster risk
reduction by sharing disaster information, drill preparing survival kit, etc. So, children canlearn them and cultivate safety awareness.
Moreover, children can learn safety culture by themselves from Japanenvironment. Not many museums around them, Japan provides disaster activity for theirexperiences such as Kaeru Caravan at JICA building. Exhibitions are building disasterawareness for children. They can get many toys by playing games or attending activities.
These attract children and their family to enjoy activity and get more experiences.

Source : ADRC

4.

Japan focusing on changing lesson learned to practice.
Law on Disaster Management is one thing that shows Japan can change

knowledge and idea to concrete practice without waiting. Disaster management in Japan isaccording to of the Disaster Countermeasures Basic Act which addresses all of the disaster
phases of prevention, mitigation and preparedness, emergency response as well as recovery
and reconstruction. This law clearly defines the roles and responsibilities of the national andlocal governments for disaster management. The one important thing making law on disastermanagement is modern and efficiency is that revisions and amendments of laws, plans andsystem are made after every disaster based on lessons learned for further improvement
Japan has other specific laws on disaster operations for efficient disastermanagement such as Disaster Relief Act, etc. And also Japan has provision of law on
network or voluntary organization clearly and easily to understand. Disaster Countermeasures
Basic Act (1961) assigns government and local government are responsible for enhancing
and supporting network including establishes Disaster Volunteer Centers as temporaryorganization. Disaster Volunteer Centers provision is problem solving of volunteer systemmanagement in affected areas.
Moreover, there are laws and regulations related on network or voluntaryorganization. For example Non – Profitable Organization Law is a major difference between
this and previous law from result of the Great Hanshin Earthquake. This situation lead to46

awareness of the importance of volunteering grows quickly among both government officials
and ordinary people and finally NPOs Law acquires nonprofit corporation status despite
being engaged in non-profit activities. The aim is to solve problems for unincorporatedorganizations, such as a resulting lack of social credibility, inability to manage their assets asan organization, and in the case of those engaged in overseas efforts, inability to officiallyparticipate in international conferences.
Not only law on disaster but also disaster management by establishing the Japan
Voluntary Organizations Active in Disaster (JVOAD). This organization is the result of theexperiences after the Great East Japan Earthquake of 2011. There were many assistances
and aids from individual volunteers, NPOs, government ministries, and Tohoku residents.
These relief efforts lead to focus on the efficiency and strength of Japan‟s response to
emergencies and disaster events. Thus, the NGO/NPO sector, academia, and the Japanese
government explored the idea of creating such a national body that would coordinate JapaneseNGOs and NPOs and interface on their behalf with relevant government offices. Finally,
JVOAD is an organization established and its aim is to support disaster victims and minimize
vulnerability to future disasters through the development of a support network and by promoting
cooperation across regions, areas and sectors.

5.

Japan communicates to public with strong and attractive content.
Communication with strong and attractive content makes people understandtheir duty when disaster occurs and creates consciousness and behavior leading to safety
culture in finally. Japan highlights “Self Help, Mutual Help and Public Help”. This concepts
emphasis on individual preparedness for disaster by protecting self-first, then to assist family,
neighbors and community by mutually supporting until the public help arrives to the affectedarea.
Moreover, there are many attractive signed boards, posters, brochures anddocuments with picture, cartoon and concise content in public places. Japan provides some
information which people can bring it back and study by themselves such as hazard map andguidebook.

Source : ADRC
47

6. Japan focuses on systematic management for effective operation.
Network is a group of ordinary people who get together voluntarily to form anorganization to carry on activities. They may lack of know-how to manage organization.
Japan by local governments support them by providing guidebooks for Local Voluntary
Organizations to lay down guidelines on initiate practice. These guidebooks include how toorganize and manage organization, DRR knowledge dissemination, how to develop DRR
map, how to organize training, how to prepare DRR equipment, disaster drill, how to conduct
activities at disaster time, etc. These make them continually carry on activities because
management troubles can be a huge issue to stop activities.
Moreover, the aim of establishing the Japan Voluntary Organizations Active in Disaster(JVOAD) and Disaster Volunteer Center is systematic management between public sector
and citizen sector.

5.2

CONCLUSION AND RECOMMENDATIONS
Network which is civil sector is significant in disaster management and disaster

reduction. The members of network are resident who know well about their area andcommunity. They are not only people who interesting in disaster management but many
people are leaders of community also. Thus, they can inform understanding of safety culture
and cultural transmission to people in their community.
Both government and local administrative organization are responsible for disastermanagement as well as promote networking according the Disaster Prevention and
Mitigation Act 2007 (B.E 2550) and the National Disaster Risk Management Plan 2015
(B.E 2558). Especially the local administrative organization which is close to the network
within the respective local jurisdiction plays an important role.

48

SAFETY THAILAND is driven since 2015 which compels cooperation in concrete
management in all sectors and all agencies of Thailand to build safety culture in order toachieve the important goals for providing safety to Thai people.
Cultivating safety culture is significant principle in disaster risk management. National
Disaster Risk Management Plan sets disaster risk management target on encouraging
the general public engagement in fostering and maintaining a robust safety culture anddisaster - resilient society. This target is to increase public safety awareness throughhighlighting the creation of body of knowledge, awareness, and safety culture as well as
developing local and community capacity gearing towards building community resilience todisaster. It can be said that safety culture is one principle which lead Thailand to resilience.
At present, DDPM drives on DDPM Strategy Plan 2017 - 2021 and the 3 rd. strategy
is to strengthen public sector, private sector, communities, volunteers, and networks in
knowledge, awareness, safety culture and participation in disaster risk management.
However, strong individual capacity lead to strong network capacity so DDPM focus on
enhancement of individual ant network capacity at the same time. Networks are residents incommunity who know and have experiences about their area, environment and community.
They are not only people who interesting in disaster management but many people areleader of community also. Thus, they can inform understanding of safety culture and culturaltransmission to people in their community. DDPM encourages individual capacity for self –
help, help people and community in policy and projects, and building safety culture including
training them to be volunteers. The challenges of capacity individual are how to train themspecific disaster program for each community suitably and how to make them ready to work
promptly.
For network capacity, there are many types of networks in Thailand but some of themlack of organization management in long term. Moreover, there are no support system when
they working together. These are challenges. The one approach to network capacity
development is CBDRM. The importance of CBDRM has been recognized since long inpromoting a safety culture through disaster risk reduction. These approaches have beenpracticed by various community groups. DDPM focus on applying CBDRM with communities
in policy planning and projects. Communities in Thailand accomplish and people have safety
awareness. It can be said that CBDRM is not use for only community but also organization orgroup of people including networks. The challenges of Thailand are how CBDRM approachpracticed in all sectors of Thailand and how networks practice through CBDRM approach.
Now DDPM has thinking to use CBDRM approach in Civil Defense Volunteer for organization
management. This thinking is initiate and concrete effort through making Civil defense
Volunteer Strategy Plan 2018 – 2021. The strength of Civil Defense Volunteer is strong
structure organization. They are only one network in Disaster Prevention and Mitigation Act

49

2007 (B.E 2550), and they have regulations for structure and organization management.
Moreover, the structure of Civil Defense Center, according to the administrative structure ofThailand, can promote widespread CBDRM approach in all level of Thailand administration.
These can lead to CBDRM and safety culture development in Thailand. However, othernetworks practicing CBDRM is next challenge of Thailand.

Strength of Safety Culture Networking in Thailand:
1. “SAFETY THAILAND” Policy is a significant agenda of government. Government
agencies and other sectors must strive to drive this policy. It is not sole responsibility of
the government and local administrative organization only.
2. Most members of network are social leaders and play important role in thecommunity. They can transfer Safety Culture to the people in community better than official
because they are a resident in community and people trust in their leaders and open mind tolearn new things.
3. There are networks in various functions of disaster operation in Thailand such as
early warning, rescue team, etc.
4. Networking is flexible for Disaster management. Some networks are overseen
by DDPM, they can manage themselves independently. But civil defense volunteer asassistance official are controlled by civil Defense Volunteer Center in each level, the director
can order them directly.
5. DDPM has policy to promote network by specific training. So, training programs
are update and modern.
6. Civil defense volunteer Organization-

There are civil defense volunteer Organization in every local administrative

organization, every province and DDPM covering all area of Thailand.
-

They are under Ministry‟s Regulation of Interior on Civil Defense Volunteer

B.E. 2553 (2010) which is their specific regulation. Organization management is clear patternin overseeing the volunteer, recruitment, training, right and duties, and discipline.
-

There are awards for morale that encourage them to work continuously.

-

They can receive money as expense according to Regulation of the National

Disaster Prevention and Mitigation Committee on expenditure of Civil Defense Volunteer toprevent and mitigate the disaster B.E 2560 (2017)50

7. There are Rescue Volunteers in Charitable Organizations covering all area ofThailand. Some of them have medical team and they are well trained by the National Institutefor Emergency Medicine (NIEM) established under the Emergency Medical Act 2008 (B.E.2551)
before performing their duties.
8. DDPM has E-Volunteer Project Development which is database networks in
Thailand. Relevant organizations as DDPM, provincial administration and local administrative
organization can browse their networks and know amount of human resources in area fordisaster management.

Weakness of Networking in Thailand:
1. Thailand cannot provide environment for creating safety culture enough. For
example, there is only one museum related the phenomena of natural disaster that
happened in Phuket. So rising awareness or safety culture is difficult as well as culturaltransition to the next generation.
2. Thai people hardly get public disaster information such as hazard map. Even if
they have rights to information access, some information is requested before.
3. Disaster information and materials for public are not attractive and easy tounderstand.
4. Providing budget is limit because cultivating safety culture projects are difficult tomeasure the results such as whether people in community have knowledge from training
project or not.
5. The local administrative organization has many public service responsibilities
including disaster management and disaster risk reduction so it depends on the policy ofeach local administrative organization whether these are important or not.
6.

Thailand lacks of know – how regarding cooperation between volunteers

and affected community and cannot manage assistance teams well, due to the lack ofmanagement skills especially local administrative organization. Management in disastertime is poor and ineffective management.
In practice, such responsibility is discretion of the commander/director in eachdisaster level according the Disaster Prevention and Mitigation Act 2007 (B.E 2550).There isno clear pattern management while the commander/director has various missions in chargeof disaster operations.

51

Recommendations
1. Thailand should provide environment for raising safety awareness, cultivating
safety culture and cultural transmission because safety mind cannot be created in a shortperiod of time but it will be molded with a personality for a long time to create consciousness
and behavior since a child born. Safety culture environment creates incentive and inspiration
to people in safety living as well as create consciousness and behavior in safety living
without force.
For example:-

To provide public museum or exhibition related the phenomena of disaster.

The aims are source of knowledge and information to educate people and making themready to face disaster. These public museum or exhibition may be held by government
agencies as DDPM, Meteorological Department of Thailand, Ministry of Transport, and etc.
as well as local administrative organization.
2. Thailand should provide disaster information and materials which are easy tounderstand in short and concise content and attractive (may be used as a cartoon or picture).
The purpose is to make information easier to understand for communicate with people.
3. Thailand should provide disaster information in public place and without
requested. The aim is that people get information easily. For example;-

To provide hazard map and disaster handbook and they can bring it back.

-To provide website which is easy to access and understand in short andconcise content and attractive.
4. Thailand should provide space and opportunities for variety networks such as
resident in a condominium, student in a school or school zone (not only community/villagetype) especially children group which are important group for cultivating safety culture.
5. Thailand should provide system or concept for supporting network management
such as guidebooks in each network. These are not for control them but oversee.
However providing standards for control network involved loss of life and injuries
operation such as a medical emergency are necessary.
6. Thailand should establish organization to manage and coordinate network systemand sharing information in affected area to relevant organization for supporting when disasteroccur same as Disaster Volunteer Centers and Japan Voluntary Organizations Active inDisasters (JVOAD).

52

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ANA HOLDINGS announces partnership with Japan Voluntary Organizations Active inDisaster (JVOAD) to support leadership in disaster recovery. Retrieved fromhttps://www.ana.co.jp/group/en/pr/201704/20170414.html
Manabu Sako. The Accomplishments and Issues of Volunteer Work Discovered ThroughManaging Disaster Volunteer Centers During the Great Earthquake of EasternJapan. Retrieved fromhttp://webcache.googleusercontent.com/search?q=cache:xlVmFrak7SYJ:www.wcdr
r.org/wcdrr-data/uploads/503/The%2520Accomplishments%2520and%2520Issues%2520of%2520Volunteer%2520Work%2520Discoverred%2520Through%2520Man
aging%2520Disaster%2520Volunteer%2520Centers%2520During%2520the%2520
Great%2520Earthquake%2520of%2520Eastern%2520Japan.pptx+&cd=2&hl=th&ct=clnk&gl=jp

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Manabu Sako .Social Welfare and Disaster Risk Support System in Japan Retrieved fromhttp://www.wcdrr.org/wcdrr-data/uploads/482/Presentation-Manabu%20Sako%20(Japan%20National%20Council%20of%20Social%20Welfare).pdf
Isamu Suzuki. Roles of Volunteers in Disaster Prevention : Implications of questionnaire
and interview surveys. Retrieved from https://www.terrapub.co.jp/e-library/nied/pdf/153.pdf
Shohei Beniya . Who assist heavily damaged local governments? : Lessons from two greatearthquake disasters in Japan. Retrieved from https://www.ucl.ac.uk/rdr/documents/beniya
Emergency Response by Japanese Fire Service Organizations (2016), Tatsuji SUGIMOTO,
retrived from http://www.kaigai-shobo.jp/pdf/EmergencyResponse_by_Japanese.pdf
Fire service system in Japan, FDMA, Retrieved from http://www.kaigai-shobo.jp/pdf/1Fire _Service_eng.pdf
Volunteer Fire Corps, Tokyo Metropolitan Government, Retrieved from http://www.bousai .
metro. tokyo.jp /foreign/english/bousai/2000170/2000073.html

WEBSITE-

http://www.adrc.asia/index.php-

http://www.fdma.go.jp/en/-

http://www.jnpoc.ne.jp/en-

http://www.dri.ne.jp/en-

http://www.bousai.metro.tokyo.jp/

PRESENTATION MATERIALS-Miss Shiomi Yumi of Asian Disaster Reduction Center (ADRC)-

Professor Kaneko Yuka of Kobe University-

Dr. Shohei Beniya of University of Hyogo-

JVOAD (Japan Voluntary Organizations Active in Disaster)-

DDPM (Department of Disaster Prevention and Mitigation, Thailand)55